DG H Schengen Catalogue - Consilium · 2020. 10. 1. · Common Manual. 2. The Working Party on Schengen Evaluation adopted the following definitions to conduct this exercise: recommendations:

EN

GENERAL SECRETARIAT

DG H

COUNCIL OFTHE EUROPEAN UNION

EUSchengen Catalogue

External borders control,Removal and readmission:Recommendations and best practices

F e b r u a r y 2 0 0 2

EUSchengen Catalogue

External borders control,Removal and readmission:

Recommendations and best practices

3

PREFACE BY MARIANO RAJOY BREY,FIRST DEPUTY PRIME MINISTER AND MINISTER FOR THE INTERIOR OF SPAIN,

PRESIDENT-IN-OFFICE OF THE COUNCIL OF THE EUROPEAN UNION

Spain, which has held the Presidency of the Council of the European Union since 1 January thisyear, is giving priority treatment to the enlargement of the European Union to include the candidatecountries, which is the cornerstone of European integration.

The building of a common area of freedom, security and justice and the creation of the Schengenarea occupy a prominent place in the process of consolidating and strengthening the Union andraising the profile of its institutions, not only internally in relation to the citizens of Europe, but alsoexternally, in relation to the candidate countries, enabling them to acquaint themselves with thelegal and institutional framework which constitutes the acquis in Justice and Home Affairs (JHA).

In the same effort to clarify and highlight the requirements which the candidate countries will becalled upon to meet on accession, we are presenting to them today, at this Joint Council meeting,this "Catalogue of recommendations for the correct application of the Schengen acquis and bestpractices".

The Catalogue has been drawn up by the Working Party on Schengen Evaluation, at the initiative ofBelgium and with the assistance of experts of various nationalities who have pooled theirknowledge so as to achieve a result which can be pronounced highly commendable. At present theCatalogue refers exclusively to border control and expulsion and readmission procedures, withoutprejudice to the work which successive Presidencies carry out in other fields such as visas,SIS/SIRENE, police cooperation, etc.

The purpose of the Catalogue is explanatory and it has no legally binding status. It shows, set out inseparate columns, on the one hand, the levels which may be required in order to comply with theacquis and, on the other, the best practices already being recorded in some of the Member States,although, however desirable, they are not mandatory at present.

It is with great satisfaction that the Council of the European Union presents this working tool,which is intended to dispel the uncertainties to which introduction of the Schengen acquis gives risein practice. The Spanish Presidency is confident that the Catalogue will constitute an additionalinstrument for ensuring the successful integration of the Union's new members in due time and inthe appropriate manner.

Mariano Rajoy Brey

Brussels, 28 February 2002

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TABLE OF CONTENTS

INTRODUCTION ...............................................................................................................................7

PART ONE: BORDERS, BORDER SURVEILLANCE AND BORDER CONTROL

A. Integrated border security model (a mechanism of different tiers/filters).............................11

1. Introduction ..............................................................................................................................................11

2. The four tiers.............................................................................................................................................12

3. Key elements for the correct application of the Integrated Border Security Model ..........................16

B. Details of recommendations and best practices ......................................................................18

Recommendations/Best practices .......................................................................................................................18

1. Strategy and organisational structure ....................................................................................................18

2. Infrastructure............................................................................................................................................23

3. Staff............................................................................................................................................................27

4. Training .....................................................................................................................................................28

5. Equipment .................................................................................................................................................30

6. Internal coordination ...............................................................................................................................33

7. Different kinds of international cooperation..........................................................................................34

8. Rules and procedures ...............................................................................................................................36

9. Particular cases for certain types of border ...........................................................................................38

PART TWO: REMOVAL AND READMISSION

1. Introduction .............................................................................................................................................48

2. Removal measures ....................................................................................................................................49

3. Persons concerned ...................................................................................................................................50

4. Implementation of removal measures.....................................................................................................51

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SCHENGEN CATALOGUE

INTRODUCTION

1. At its meeting on 28 May 2001, the Council set as an objective for further work by the

Working Party on Schengen Evaluation the identification of "... best practices, particularly as

regards border controls, so that they can serve as examples for those States acceding to

Schengen but also those fully applying the Schengen acquis. These evaluations and the

identification of best practices shall serve as inspiration for the establishment of standards

defining the minimum application of the Schengen acquis (e.g. essential equipment at each

border post) in the relevant working groups" (mandate for the Working Party on Schengen

Evaluation) (8881/01 SCH-EVAL 17, COMIX 371).

On the basis of this mandate, the Working Party on Schengen Evaluation worked out the

principles and procedure for drawing up the Catalogue of recommendations for the correct

application of the Schengen acquis and best practices, hereinafter referred to as the Catalogue

of recommendations and best practices, or Catalogue.

The purpose of the Catalogue is to clarify and detail the Schengen acquis and to indicate

recommendations and best practices, in order to provide an example for those States acceding

to Schengen and also those fully applying the Schengen acquis. With this in mind the

Catalogue gives a good indication to the candidate countries for accession to the European

Union (hereinafter referred to as the "EU") (at their request) as to what is expected of them,

particularly in practical terms, regarding Schengen. The aim is not to give an exhaustive

definition of the whole of the Schengen acquis but to put forward recommendations and best

practices in the light of the experience gained by the Working Party on Schengen Evaluation

in verifying the correct application of the Schengen acquis in Germany and in evaluating

Greece and the Nordic countries.

The text of the Catalogue does not seek to introduce new requirements but should also make it

possible to draw the Council's attention to the need where appropriate to amend certain

provisions of the Schengen acquis so that the Commission and, where appropriate, the

Member States take the recommendations and best practices into account when putting

forward proposals or formal initiatives. This exercise is inter alia the first stage of the process

of defining minimum standards by the Council.

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Moreover, the Catalogue will serve as a reference tool for future evaluations undertaken in the

candidate countries. It will therefore also serve as an indicator for these countries of the tasks

which they will be assigned and in this respect should be read in conjunction with the

Common Manual.

2. The Working Party on Schengen Evaluation adopted the following definitions to conduct this

exercise:

recommendations: non-exhaustive series of measures which should make it possible to

establish a basis for the correct application of the Schengen acquis and for monitoring it.

best practices: non-exhaustive set of working methods or model measures which must be

considered as the optimal application of the Schengen acquis, it being understood that several

best practices are possible for each specific part of Schengen cooperation.

3. Where the Catalogue mentions the Member States which apply the Schengen acquis, this is

currently to be taken as meaning the thirteen Member States of the EU referred to in Article 1

of the Protocol integrating the Schengen acquis into the framework of the EU annexed to the

Treaty on European Union and to the Treaty establishing the European Community

(hereinafter the "Schengen Protocol"), to which must be added Iceland and Norway, pursuant

to the Agreement concluded by the Council of the European Union, the Republic of Iceland

and the Kingdom of Norway concerning the latters' association with the implementation,

application and development of the Schengen acquis, signed on 18 May 1999 (these 15 States

are hereinafter referred to as the "Schengen States").

The United Kingdom and Ireland expressed the wish to participate in certain provisions of the

Schengen acquis. The Council has not yet adopted a decision on Ireland's request to

participate. The arrangements for the United Kingdom's participation were adopted in the

Council Decision of 29 May 2000 (2000/365/EC). The Council has not yet decided on the

implementation of the provisions in question.

The Schengen acquis and the other measures taken by the institutions within the scope of the

acquis are, under Article 8 of the Schengen Protocol, regarded as an acquis which must be

accepted in full by all States candidates for accession.

4. The Schengen acquis was integrated into the EU framework by the Schengen Protocol. The

extent of the acquis is defined in Council Decision 1999/435/EC, published in OJ L 176 of

10 July 1999.

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Since its integration into the EU, the Schengen acquis has undergone developments and

amendments which lend it an evolutionary character.

The Schengen acquis has also taken on board the results of the evaluations which have been

conducted within the framework of the Standing Committee for the application and evaluation

of the Schengen acquis, now called the "Working Party on Schengen Evaluation". Under the

Working Party's mandate, reports are submitted to the Council to establish whether the

conditions required for the entry into force of the provisions of the Schengen acquis in a

country wishing to participate in those provisions (or in some of them) have been met and,

secondly, to monitor the correct application of the Schengen acquis by the Schengen States, in

particular by detecting problems and proposing solutions.

5. The current Catalogue deals primarily with the issues of borders and removal. Free

movement as introduced within the territory of the Schengen States (this term and the

expression "Schengen States" refer to the territory of the Schengen States in which the

Schengen acquis applies) is a freedom which as a counterpart requires the strengthening of the

external borders of that area and a policy for the removal of illegally resident aliens which is

effective and dissuasive. The fight against illegal immigration is a major preoccupation for

the whole of the EU. It is indeed this double axiom which guides EU action in this sphere.

Accordingly, the measures adopted in this context seek to strengthen European integration

and in particular to enable the EU to become more rapidly an area of freedom, security and

justice.

6. The Catalogue refers to ideas or concepts connected with the administration of borders, the

terms of which are not uniformly defined or codified in the Schengen States. In the interests

of ease of understanding, the following definitions apply to the terms used:

a. Integrated Border Security Model: name of the system covering all aspects of border

policy. This system is spread over four complementary tiers (filters) which are:

activities in third countries, countries of origin and transit, bilateral and international

cooperation, measures at the external borders and further activities inside the territory.

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b. Border Management: this concept covers both the surveillance of borders and checks,

the latter being defined in Article 6 of the Schengen Convention:

Border checks: checks carried out at authorised crossing points. It should be

noted that checks on persons shall include not only the verification of travel

documents and the other conditions governing entry, residence, work and exit but

also checks to detect and prevent threats to the national security and public policy

of the Schengen States. Such checks shall also be carried out on vehicles and

objects in the possession of persons crossing the border.

Border surveillance: surveillance carried out between authorised crossing points.

7. In the Catalogue the reader will find the following sections: the Catalogue currently comprises

two main chapters, one on borders and the other on removal. A general section describes the

basic concepts underlying the policy and is followed by recommendations and best practices

presented in tabular form, with recommendations on the left and best practices on the right,

alongside the relevant recommendations. Where one of these recommendations applies only

to one or two types of border this is mentioned in the text.

* * *

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PART ONE : BORDERS, BORDER SURVEILLANCE AND BORDER CONTROL

A. INTEGRATED BORDER SECURITY MODEL (A MECHANISM OF DIFFERENT

TIERS/FILTERS)

1. INTRODUCTION

An overall border model is an important tool to safeguard internal security and in particular

prevent illegal immigration. It means in simplified terms that a set of complementary

measures has to be implemented on different tiers. In this respect four tiers can be identified.

(1) Activities in third countries, especially in countries of origin and transit, including the

collection of information by liaison officers as well as the key role of the consular post

abroad in the process of issuing visas.

(2) International border cooperation.

(3) Measures at external borders: border management (border checks and border

surveillance).

(4) Further activities inside the territory of the Schengen States and between Schengen

States.

The coherence between these measures and the way they are applied by Schengen States is a

key to the success of the general border model.

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2. THE FOUR TIERS

2.1. Activities in third countries, in countries of origin and transit

(a) The first measure required in terms of time and place is advice from liaison

officers and document experts in third countries of origin or transit which are the

source of the risks generated by illegal immigration (Article 47 (4) of the 1990

Convention implementing the Schengen Agreement (hereafter the "Schengen

Convention") and SCH/Com-ex (98) 59 rev). Officials working abroad for the

Schengen States' consular posts and carriers will be trained by specialists in order

to detect document forgeries before actual travel has started.

When visas are issued and when passengers are transported by air and sea, it is of

great importance to detect false and falsified documents in order to prevent

unauthorised entry into the territory of the Schengen States. The training given by

document advisers makes a vital contribution to the detection of such forgeries by

officials working for the Schengen States' consular posts and for carriers.

(b) In the second stage, a thorough inspection of the application documents submitted

should be carried out by the Schengen States' consular representations when

issuing visas (see Articles 15 and 17 of the Schengen Convention and the

provisions of the Common Consular Instructions on Visas). This includes

inspecting documents and making database queries pursuant to Article 96 of the

Schengen Convention. Consulates should guarantee that sensitive information

and blank documents are adequately protected and stored.

The systematic implementation of EC/Schengen visa regulations should enable

the phenomenon of illegal immigration to be effectively tackled at its roots. The

importance of intensive consular cooperation should be stressed in that context.

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(c) Carriers are also obliged pursuant to national legislation on the basis of

Article 26(1)(b) of the Schengen Convention to take all necessary measures to

ensure that third-country nationals carried by air, sea or land, (see Article 26(3) of

the Schengen Convention), have the travel documents necessary for entry into the

territory of the Schengen States. If third-country nationals are set down in a

Schengen State without the prescribed documents, the carriers will be subject to

sanctions and compelled in principle to take back those passengers. Staff of

carriers should be trained. This article of the Schengen Convention has been

supplemented by Directive 2001/51/EC of 28 June 2001 L 187, 10.7.2001,

p. 45.

2.2. Bilateral and international border Cooperation

(a) International co-operation in the field of border security can be divided into

multilateral, bilateral and local cooperation. In this respect, agreements with

neighbouring countries on the cooperation in the field of border management are

an efficient tool to increase border security. This can be realised by establishing

appropriate working mechanisms such as exchange of information, establishing

appropriate communication channels, local contact points, emergency procedures,

handling incidents in an objective manner in order to avoid political disputes, etc.

Regional cooperation structures across external borders should also be established

in sea areas. These initiatives should bring together all countries in the region.

(b) As regards cooperation with adjacent states, it is considered necessary that transit

states lend their active assistance by ensuring that their borders are thoroughly

secure and by taking measures away from the border, i.e. consistent repatriation

practice if there is no right of admission and there are no impediments based on

serious humanitarian grounds or international law (e.g. the Geneva Convention

relating to the Status of Refugees, European Convention on Human Rights).

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2.3. Measures at the external borders

The core area of general border strategy is a functioning border management consisting

of border checks and border surveillance, based on a risk analysis. Article 6 of the

Schengen Convention sets out clearly the framework to be implemented by the

Common Manual, the two being complementary. Essential elements of border

management are: (1) that all persons crossing the external borders are checked

systematically and (2) effective border surveillance is ensured between border crossing

points.

In this respect all appropriate measures should be taken in order to safeguard internal

security and prevent illegal immigration:

Coherent legislation based on the EC/Schengen requirements in the area of border

management is needed (for example: border guard act, data protection rules). With

regard to infrastructure, appropriate facilities for carrying out border checks and

surveillance have to be available. Officials carrying these tasks have to be professional

and specially trained. Adequate human resources are required. Exact requirements

depend on several factors (geographical situation, volume of border traffic, etc.).

Moreover, a clear concept of training (basic and further) is required covering

operational skills, knowledge of legislation, languages, etc.

Equipment should be appropriate to the border situation. Functioning internal

coordination is needed at all levels (which authorities are competent for which task, no

competence "black holes"). Information exchange between competent authorities

(border guard, customs, police, judicial authorities, prosecutors) is essential, including a

mechanism to solve possible disputes of competence between the authorities.

Furthermore, operational issues should be covered (for example use of compatible

communication equipment).

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Agreed international/bilateral cooperation should be implemented in practice on the

spot (examples: exchange of information, joint controls, handling of readmission

situations). The special requirements for the three different types of border (air,

sea, land) should be fulfilled (for example: at airports a separation of passenger flows

extra Schengen and intra Schengen flights should be made by physical means or, for

minor airports, by a systematically monitored and accompanied flow of passengers).

2.4. Further activities inside the territory of the Schengen States

(a) Measures to prevent illegal immigration and cross-border crime should be pursued

inside the territory of the Schengen States by enhanced search, checks and

surveillance measures based on national information and in accordance with

national law, where possible on the basis of police cooperation agreements

pursuant to Article 39(4) and (5) of the Schengen Convention. Given that the

problems of migration and crime are not subject to geographical restrictions,

international traffic routes should in future become main areas of activity for

national police forces in accordance with domestic law. However, where public

policy or national security so require, a Schengen State may, after consulting the

other Schengen States, decide that for a limited period national border checks

appropriate to the situation shall be carried out at internal borders.

(b) The last stage in the geographical and time sequence is repatriation in accordance

with national law (see Article 23 of the Schengen Convention and Directive

2001/40/EC of 28 May 2001 - L 149, 2.6.2001, p. 34) of third-country nationals

who have entered the Schengen territory without authorisation, if no right to stay

exists and if there are no obstacles based on compelling humanitarian grounds or

international law (e.g. the Geneva Convention on Refugees, European Convention

on Human Rights).

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3. KEY ELEMENTS FOR THE CORRECT APPLICATION OF THE INTEGRATED BORDER SECURITY

MODEL

Emphasis should be placed on the coordination of duties between the responsible government

bodies in dealing with information, reports and training and in responding to irregularities.

Coordination in these fields should extend to regional and local levels too.

Another key element of the method is to pay attention to the assessment of the situation.

Thus, the performance of a border management system should be adjusted in accordance with

the prevailing conditions along all its borders. Valid and reliable data should form part of a

permanent evaluation which could be shared by other Schengen States. Where necessary, the

allocation of resources should be adapted accordingly.

As a general rule, persons performing border police duties should be specialised trained

professionals. Persons with less experience can be used only for auxiliary duties assisting

professionals temporarily. No exception is allowed in respect of duties that require any use of

personal data, making searches in confidential registers or decisions interfering with an

individual's physical integrity or freedom.

To facilitate mutual trust, any Schengen State should be able to provide valid and reliable data

concerning the situation at all its borders and also the border checks and surveillance

measures applied. Knowledge of the situation at the border relies on knowledge of the

performance of border management systems. Reliable estimates concerning border checks

and surveillance measures should be based, among other things, on complete knowledge of

regional and local circumstances. To attain the above aims and to facilitate cost-effective use

of resources, various methodologies should be applied at the borders. Terms such as risk

analysis, intelligence, data-flow management, situational awareness, reaction capability and

information exchange with other Schengen States can be used when evaluating and

developing these methods.

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Risk analysis can be seen as a tool for optimisation of border management and a way of

providing reliable information on the border situation. It should be adapted to the type of

borders.

At practical level this means evaluation of the persons, vehicles, vessels or flights to be

checked. This evaluation is made in the context of a real time tactical situation and thus the

methods can be called tactical risk analysis. At the external border, all persons should be

checked according to the Common Manual. To detect cross-border crime, extra emphasis

should be placed on the checking procedure for suspect objects. Personnel should be

provided with knowledge of risk indicators, risk profiles and typical modi operandi of

cross-border crime. Named special targets of surveillance and checks should also be known

to personnel. The risk analysis and management of borders need to be backed by systematic

intelligence. Border management systems should be able to gather intelligence, analyse it

and, finally, utilise the products in field work.

To have a realistic picture of prevailing irregularities for the purposes of medium and

long-term operative management, estimates should be made of:

● the level of risk defined by the authorities in respect of illegal crossing of the border

● the level of detected irregularities

● the level of estimated undetected irregularities.

This is to ensure that resources will be allocated optimally along the border in order to

maintain a reasonable risk level in respect of illegal crossing of the border. Further, at all

managerial levels, the management system should be evaluated in order to find out

shortcomings or gaps in the system. These exist where a border can predictably be crossed

illegally with very low risk or no risk at all.

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B. DETAILS OF RECOMMENDATIONS AND BEST PRACTICES

RECOMMENDATIONS/BEST PRACTICES

Recommendations Best practices

1 Strategy and organisational structure

1.1 general strategy for border

management + risk assessment

- establishing a national plan defining the

steps to be taken in the countries of

origin and transit, at external Schengen

borders and inside the individual

Schengen States

- border management is a task which

requires a high level of professionalism

- streamlined and functional ministerial

competences for border management.

Centralised supervision and instructions

for border checks and surveillance

under the auspices of a ministry

working in the field of justice and home

affairs.

- effective border management is ensured

by supplementing strategy with

technology, equipment and staff;

mobile and stationary, airborne or on

land/sea, uniformed or plain clothed.

- the competent public authority is a

specialised Police/Border Guard force

(not a military force)

- border checks and surveillance should be

executed by professional officials of the

same administration organising border

management if possible under a single

national ministry.

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- permanent analysis determines theallocation of personnel and technicalresources;

- an evaluation is to be made to ensurethat border management matches therequirements of Article 6 of theSchengen Convention and to considerwhether border management has to beadapted. Article 7 requires exchange ofall relevant information.

- at international level border

management should be governed by

bilateral agreements

- cooperation and coordination of the

responsibilities of the different bodies

should be regulated by an official Act

These agreements/Acts should cover the

whole spectrum of cross-border cooperation,

i.e. joint risk analysis, exchange of

experience, cooperation on training,

cooperation on investigation

1.2 Intelligence and data-flow

management

- a two-way information exchangeshould be arranged between central andlocal levels of the border managementauthority.

- the local authorities should beinstructed to gather information onillegal immigration and other cross-border irregularities, analyse it locally,and pass it on to central level.

A secure database is established to exchangeexperience between units and to distributeinformation on intelligence objects. Thisdatabase is available for use in bordermanagement.

For specified analysis and exchange ofinformation, a network of intelligence liaisonofficers is established to connect differentunits and different organisational levels.

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- the central level should compile all

information country-wide, process it

into usable form and deliver it to local

authorities to be used as a tool for

tactical risk analysis and operational

planning.

- data-flow management can be used as a

means of evaluating the effectiveness of

information exchange within and

between authorities involved in border

management. Availability of and

access to vital data and data protection

are also elements to be evaluated.

Information in the intelligence database is

hidden, until a specific inquiry is made. The

right to make searches is controlled by a

supervisory unit.

1.3 regional or local strategy

- where appropriate, establish regional

plans based on risk assessment

intensive cooperation between all law

enforcement agencies in the national

border region

- cooperation with law enforcement

agencies of neighbouring states

- reception of information from the

population should be encouraged and

transformed into risk analysis and

operational activities if necessary

- creating access points for information

from and to the public (Internet, etc.)

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1.4 organisational (functional) structure

- coordination of all activities at central,

regional and local levels

- establishing capabilities to fight

successfully against illegal crossing of

the border

- the organisation should provide highly

specialised services required for border

checks/surveillance - for example on

false documents

- specify a lapse of time within which the

squad should reach the border in the

event of an alarm

- creating a local and regional

coordination mechanism or organisation

- establishing specialised

officers/teams/units to fight illegal

crossing of the border crime at different

levels if needed

- the organisational structure provides for

a specialised officer for false and

falsified documents and one with the

necessary linguistic skills to be available

on every shift or at every border crossing

point (hereafter "BCP")

1.5 availability and permanency

- depending on the situation, ensure

availability and permanency of staff

1.6 Situational awareness and reaction

capability

In green and blue border management, terms

of situational awareness and reaction

capability can be used to define the level of

risk to be confronted with illegal border

crossings.

Situational awareness measures how the

At land borders, the border is subject to

constant monitoring (human or technical

devices). Where this is not feasible,

specialised sniffer dogs may extend

surveillance time. The dogs should not be

aggressive or uncontrolled when meeting

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authorities are capable of detecting

cross-border movements and finding

reasoned grounds for control measures.

In practice, situational awareness depicts how

the authorities define the lapse of time and

area for three functions:

- detecting movements that could

possibly be attempts to cross the border

illegally

- identifying the detected targets

- analysing the previous identifications in

due time

The reaction capability at sea or land

measures the lapse of time required to reach

any cross-border movement to be controlled

and also the time and the means to react

adequately to unusual circumstances. The

latter also applies also to the situation at

airports.

illegal border crossers.

At sea a VTMIS (or compatible) system

covers the entire maritime area and ports

under evaluation. All vessels are detected

and identified by the system. Once

identified, a vessel remains constantly known

by the system. The system is backed up by

offshore craft and airplanes. These mobile

units make close identification, fill in gaps

and retrieve information from outside the

system. At ports, based on a risk analysis,

the port area may be fenced off and

monitored constantly. In such cases all

persons entering or leaving the port area are

checked.

- deploy stand-by squads

At sea, constant readiness to dispatch a

mobile unit, in order to maintain any vessel

trying to reach the coast under constant

surveillance.

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2 Infrastructure

2.1 entrance and exit checks

- facilities should be in place to carry out

the compulsory entrance and exit

checks.

- at land borders, entering and exiting

cross-border traffic of all kinds should

be separated. This applies also to sea

borders between the vessel and the

border checks.

2.2 organisation of border surveillance

- border surveillance can be carried out

by human resources (supported by

technical means) or mainly by highly

sophisticated man-operated techniques.

To ensure efficiency, the means are

adapted to the density of population,

number of personnel, equipment and

migration risk.

- deployment and spread of infrastructure

facilities (buildings, etc.) adapted to

mobility, number of staff, regional

traffic infrastructure and migration risk

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2.3 organisation of the border crossing

point

- exchange of information with the

neighbouring country on building a

BCP, aiming at a certain degree of

coordination (land)

- constructing border crossing points,

using common experience among

Schengen States, depending on regional

conditions, in perhaps two versions, one

large model and another a small BCP.

Travellers should be made familiar with

similar procedures

- the delimitation of the BCP and the

applicable regulations should be readily

visible to all

- border checks to be carried out in

special control booths or at desks or,

where appropriate, with mobile

equipment.

- inside buildings special dedicated desks

or booths shall be provided for the

different tasks and be built accordingly

- building BCP installations with the

neighbouring country in a coordinated

way to achieve adequacy of means

(dimensions, lanes, installations) (land)

- signposts to provide information for

users in different languages (depending

on type of BCP and neighbouring

country) or by internationally used

drawings (pictograms)

- a fence around the BCP (land)

- these installations to be provided to all

relevant national services/authorities

25


Outside buildings, control booths

containing the necessary equipment

- unauthorised observation (especially of

computer systems) should be prevented

- to define standardised criteria for the

manufacture of control booths (having

regard to security; technical equipment)

- control booth should be facing the

passengers (air, sea)

- communication

a suitable communication system

should provide instant information on

each important situation at any time for

all units

2.4 separation of passenger flows

Structure

Separation at ports

Ferry passengers to be separated so that

external border traffic can never mix with

internal traffic between the vessel and the

border check. As a general rule, this must be

guaranteed by means of physical fixtures

(walls, fences, etc.). In minor ports with only

a limited amount of passengers, constructions

can be supplemented by surveillance.

- control booth from which officers can

oversee the queue of passengers waiting

26


Separation at airports

Airports should be (re-)arranged in order to

avoid the possibility of persons or documents,

passing from the non-Schengen zone to the

Schengen-zone and vice-versa by physical

separation.

Aerodromes where the volume of traffic

allows to do so may separate flows by

organising systematically monitored and

accompanied flow of passengers.

Procedures

Identify Schengen and non-Schengen flights

Cooperate as closely as possible with third

parties at airports, with special attention to

connecting flights

Provide the necessary information in due time

for the border management authorities.

Establish a link with the flight aviation

information system

Separate terminals for Schengen and

non-Schengen traffic

Separate and dedicated levels for Schengen

and non-Schengen traffic

Watertightness may be obtained by walls,

glass, metal grid, ..., reaching from the floor

to the ceiling

- checks at the gate for high-risk flights

Monitor the flights accordingly through a real

time system, agreed upon with the civil

aviation authority

Plan buses for transporting passengers from

remote parking areas to the dedicated area of

the airport.

27


2.5 lanes for checks

Separation between (a) EU and EEA

nationals and (b) non-EU/non-EEA nationals

(airports and sea)

Number and capacity of lanes should fulfil

the need for fluid and quick but

Schengen-compliant checks and surveillance

- hand-in-hand management of traffic

flows by all competent authorities of

both neighbouring States.

- flexible organisation of lanes for checks

and securing a quick and effective

reaction. Separate lanes for the

different types of traffic crossing the

border

- organisation of border checks with

priority on entry into the State

- separate lanes for checks on EEA

nationals, for third-country residents and,

depending on the situation, a third lane

for citizens of the neighbouring country

can be provided in order to facilitate

traffic. Where possible adapt the

situation to the required checks on EEA

and non-EEA nationals.

Lanes must be marked clearly for use of

travellers (private cars, pedestrians, lorries,

buses, CD/CC if necessary. Markings may be

adapted to needs in a flexible way.

3 Staff

3.1 Adequacy

- effective border checks and surveillance

require that the number of staff must be

adapted to risk assessment, based on

analysis

3.2 selection criteria for recruiting new

staff

- study comparable situations in other

Schengen States which could serve as an

example

28


- written rules for recruiting new staff

- physical suitability

- meet moral and legal requirements

(criminal (judicial, legal) records, etc.)

3.3 professionalism

- high level of professionalism based on

successfully completed training. (The

requirements for this topic are

presented under "Training", see 1.4)

- provide for regular evaluation in which

e.g. job satisfaction, effectiveness,

social conditions and liability are

measured - provision for rotation of staff. This is

considered most useful at the beginning of

the career for reasons of effectiveness

4 Training

4.1 basic training

Operational staff should have successfully

completed a training course covering their

future tasks, which should include:

- knowledge of relevant Schengen and

EC/EU provisions

- basic rules and procedures

- document checks (valid, falsified

documents)

- rules for entry, stay and exit

- programmes should adapt flexibly to risk

assessment

29


- coordination and cooperation with other

agencies

- special cooperation between Schengen

States in the internal border zone

(Dublin, readmission, etc.)

- police cooperation

- Schengen Information System

- judicial cooperation

4.2 further continuing education

- a training programme must be

established with a regular training/briefing

hours for officers as part of working hours

4.3 linguistic training

- ability to speak a foreign language

useful for their work

4.4 specialised technical training

counterfeits and forgeries

- specialised training in recognising false

travel documents

4.5 Specialised training for management

levels

The organisation should provide programmes

and facilities at central and local level to

accompany officers during their career by

offering them education and training on

issues which are relevant to their work

encourage staff to learn other languages

necessary for their work, languages of the

neighbouring countries or the countries of

origin

Specialist officers should train officers at all

BCPs

- international experience of a similar

responsibility is an asset

- participation in the CEPOL training

programme will in future be advisable

30


5 Equipment

5.1 Recommended equipment

5.1.1. Introduction

The following paragraphs will mention

equipment which is deemed necessary and

should be permanently optimised in the first

line and additional requirements in the second

line, in trains as well as mobile equipment. It

should be stressed that SIS connection and

stamps are considered to be key equipment

5.1.2. In the first line:

Upon entry and exit at the BCPs access to the

following equipment should be provided:

- terminal for consulting SIS and national

systems. There will be mobile

terminals at ground checks on

passengers in vehicles in sea ports with

ferry traffic and in airports with limited

traffic; otherwise fixed terminals.

- document examination instrument, with

UV light, white overhead light,

transmitted light, etc.

- magnifying glass x 8/10

- retro-reflective lamp

- stamps. Pursuant to the Common

Manual, Schengen entry and exit

stamps will be provided to all BCPs.

Information on lost or stolen stamps

must be given as quickly as possible to

Car numberplate imaging system

- truck scanning facility

- radioactivity sensors

- mobile/stationary X-ray machine

Number of stamps should be listed for the

different officers

31


Schengen States

5.1.3. For in-depth checks in the

second line

Questioned Document Examination System

for authentication of travel documents with

infrared and ultraviolet light, filters, etc.

- stereo magnifying glass, for example

x 40

- identification equipment and material

(including template to compare stamps)

- Common Manual

- handbook containing genuine and false

passports and ID documents

communications equipment

- availability of sets and telephones to

communicate during border checks to

consulates or other authorities in the

Schengen States

5.1.4. Mobile equipment

Mobile equipment should be used at border

crossing points where there are no fixed

positions. The mobile equipment should

contain:

- hand-lamp with UV light

- mini-microscope x 30

- magnifying glass x 8/10

- retro-reflective lamp (3M.laminate)

- image transmitting device

- availability by electronic means of the

Common Manual

- availability by electronic means of

images of genuine, false/falsified

documents

32


- hand-lamp for overhead light,

transmitted light (Mini Maglite or

similar)

- template to compare stamps, etc.

- stable access to SIS should be provided

5.2 Border surveillance

Observation and detection material which

provides adequate surveillance of terrain in

all seasons and weather conditions (day and

night)

- mobile SIS terminal

- mobile document readable device

A highly centralised technical surveillance

system that detects and identifies (camera)

the target and enables immediate reaction

(patrol). The system is based on sensor fields

that consist of different types of sensors

(stable and portable) such as active and

passive IR-beams, radars, cameras, seismic

sensors, etc. The sensor fields and/or

individual sensors are installed in accordance

with the existing local situation. The system

itself is controlled centrally with or by a

computer in the OP centre that is capable of

commanding and controlling active patrols

and requesting reinforcements when

necessary.

thermographic cameras (portable, stationary

and/or vehicle-based)

binoculars, short and long-range versions

depending on the local situation, compatible

devices based on radio transmission,

telephone system and/or data connection are

advisable with the neighbouring country

33


5.3 Transportation/Mobility

Providing transportation depending on local

infrastructure, regional conditions (weather,

topographic situation, density of population)

manpower and migration flows

Transportation services should be available

day and night

5.4 Communication and encryption

Make provision for procedures for secured

communications between services

6 Internal coordination

- coordination between different

national services

(police-customs-border guard,

transportation authorities)

- direct and immediate interchange of

information between BCPs and border

surveillance force

- meeting between heads of services, at all

levels especially at international airports,

regular meetings between heads of

services, including airport authorities

and civil aviation authorities

- joint database

- joint risk analysis

- joint training

- integrated approach involving all

authorities for tackling the problems of

illegal immigration

agree on a decision-taking mechanism

at the appropriate level

34


common operations with joint

leadership

7 Different kinds of internationalcooperation

According to the type of borders (land, sea,

air) international cooperation can be shaped

through bilateral or multilateral agreements,

regional cooperation, liaison officers and

networks as well as transportation authorities.

These agreements should preferably be

concluded in a written form.

7.1.1 At international level,

border management should be regulated

in bilateral agreements (land borders)

7.1.2 information exchange with

other Schengen States on maritime

borders (sea)

7.1.3 information exchange with

the immigration authorities at the

airport of origin/transfer - Document advisors/Liaison officers to

detect false or falsified documents in the

consulate or airports of origin and transit (cfr.

SCH/Com-ex (98) 59 rev)

Participation in the IATA Control Authority

Working Group

Build up a working group of specialised

immigration officers at the main international

airports for tackling illegal immigration by

35


7.2 Regional cooperation

support the neighbouring border

authority through exchanging

information and transmitting facts of

interest to it.

7.3 Liaison Officers

establishment of a liaison office for the

exchange of information

on the basis of conventions or national

law

air.

In order to allow a better cooperation and a

better exchange of information between the

Border Guard services and the air travel

companies, as well the services that have to

ensure the security of the air space it is

advisable that Airport Border Guard Units

participate in the ECFALIS system

(European Civil Aviation Conference

Facilitation Information System on Illegal

Immigration). In this context, it must be

stressed that all information with police

interest should be diffused to friendly

agencies after sensitive or classified items

have been erased.

- cooperation between liaison officers

Nordic cooperation between liaison officers

could serve as an example for a future

network.

36


Use of EISICS is seen as a meaningful

practice.

8 Rules and procedures

8.1 General aspects

It should be stated that entry and exit checks

are to be performed systematically.

Exceptions to border checks are possible only

under special circumstances (this applies only

at sea and land borders)

National legislation to allow the relevant

authorities for border checks and surveillance

the legal possibility of patrolling, surveying

and investigating border-related crime,

without limiting it to the close border area

8.2 Rules for minor border traffic

Bilateral agreements are the basis of minor

border traffic between neighbouring

countries; in any event, information should be

communicated to other Schengen States.

8.3 Rules for issuing visas at the border

(B and C visas)

Visas should in principle be issued at

consulates. Only in exceptional

circumstances may they be issued at BCPs.

There should be a general manual valid for all

BCPs describing the steps to be carried out

• decision to be made by a senior officer

or official of a higher authority

In addition to the compulsory use of SIS and

the national database, recourse should be had

37


for a visa to be issued at the BCP.

all available national and Schengen State

information should be used to make a proper

decision

the decision and the major reasons underlying

it should be placed on file

necessary contacts and participation

involving other Schengen States to be carried

through in a standardised way

8.4 Seamen in transit

The rules applicable for seamen in transit are

described in Schengen Com-ex decision

(96) 27

Operational aspects of fighting

cross-border crime

The operational dimension in fighting

cross-border crime is important in border

management.

It is therefore important to have legislation

which affords all relevant authorities

to information from other services

set up specialised multidisciplinary units for

fighting border-related crime

38


(Border Guard, police, customs, judiciary,

etc.) the legal possibility of preventing and

detecting border related crime, without

limiting it to the close border area.

Schengen States should describe the

framework they have adopted to fight

cross-border crime, which:

- should be based on an analysis of the

different types of crime and

- should include an overview of all relevant

factors, such as personnel, equipment and

training as well as cooperation between

national and international services

9 Particular cases for certain types ofborder

9.1 Maritime borders

9.1.1 Risk analysis

The volume of vessel movement is usually

high in relation to the resources available for

checks. Tactical risk analysis is therefore

essential at blue border surveillance to meet

the demands set out under the Common

Manual Part II, point 2.2. Vessel movements

should be monitored and vessels identified.

Identifications (names of vessels) should be

checked against background information

VTMIS or similar system is used to cover

large maritime areas, where all major traffic

remains as identified targets. The authority

responsible for maritime border police duties

has real-time access to VTMIS. For details, it

is referred to the best practice described under

1.1.6. "Situational awareness and reaction

capability"

39


containing knowledge on risky vessels. The

level of checks on each particular vessel

should be decided according to this reference.

The same procedure should be applied to

crew and passenger lists.

The command with operative responsibility

for a defined area should maintain reasonable

risk levels against known or possibly

prevailing irregularities. This should take

place in all areas and on all flows of traffic.

To this end, the performance of border

management authorities' duties should be

adjusted in accordance with fresh knowledge

of risk factors. This basically concerns

medium-term planning in the operational

command. Medium-term methods of

evaluating the situation and adjusting

countermeasures can be called operative risk

analysis.

The operational command should have a

realistic picture of prevailing irregularities in

the area of responsibility. To that end,

figures or estimates should be arrived at for

the following:

• type and volume of all vessel movements

between the open sea and coast

• volume of actual checks directed at

different types of vessel movement

• (based on above) the level of risk of being

caught illegally crossing a border

• volume and type of detected irregularities

Formalise where possible cooperation with

carriers in Memoranda of Understanding or in

Agreements

40


• volume and type of estimated undetected

irregularities.

Cooperation with third parties

Cooperation with all type of carriers should

be strengthened

9.1.2 Cargo ships

100% administrative checks should be carried

out in advance. Based on these checks and

available intelligence, a risk analysis should

be made. High-risk vessels to be checked

physically, immediately upon arrival.

Control duties consisting of face-to-face

checks of persons on board and/or physical

search of ship.

If information concerning the crew and

passengers is not available in advance, the

ship should be physically met immediately

upon arrival.

Passengers should always be checked face to

face.

In cases of special risk, vessel to remain

under constant control of authorities during

its stay in a Schengen port. All persons

boarding and leaving the ship to be checked

face to face. Information on high-risk vessels

to be relayed to the ship's next Schengen port

of destination through the CIREFI

early-warning system.

Participation in the EISICS system

41


9.1.3 Cruise ships

In principle, the Schengen acquis requires a

face-to-face check to be made for all

passengers on board cruise ships at first and

last port of entry. As a general rule, the

passenger must meet all necessary entry or

exit preconditions. However, the regulations

concerning special circumstances will

warrant a lower level of checks if:

• there is a very large number of passengers

on board,

• only limited time is available for checks,

and

• there are good grounds for believing the

vessel with its passengers to be low-risk.

Under these conditions, administrative checks

only in the first and last Schengen port are

acceptable. This requires, at the very least,

that an SIS query is made on third-country

nationals and their passports stamped.

If the check shows on-board persons to be

refused entry to the Schengen territory,

special measures are necessary and in the

mutual interests of Schengen States and

shipping companies. The authorities should

ensure that the person remains on board and

leaves the port on the vessel. Information on

such persons should be relayed to the next

Schengen port of destination of the ship,

where a similar procedure will apply.

42


If a cruise ship is a risk in terms of illegal

crossing of the external border, special

measures are necessary and in the mutual

interests of Schengen States. Such a vessel

should remain under constant control by the

authorities during its stay in a Schengen port.

All persons boarding and leaving the ship

should be checked face to face. In order to

embark or disembark, each passenger should

meet all necessary preconditions of entry or

exit. Information on such ships should be

relayed to the next Schengen port of

destination of the ship, through the CIREFI

early warning system. In the next port, a

similar procedure will apply.

The lighter checks described above should in

no way prevent authorities from carrying out

more thorough checks anywhere in

subsequent ports.

Cruise passengers should hold a visa

complying with the same rules as other

persons when entering the Schengen territory.

9.1.4 Fishing vessels

Monitoring should be carried out to ensure

that fishing vessels coming from third

countries follow the correct procedure.

The Schengen acquis allows administrative

checks on crew members, if they can be

regarded as seamen. Nevertheless, recourse

Exchange of information is arranged between

Schengen States and neighbouring third

states. The third state reports inter alia

vessels that are leaving its territory and,

especially, boats that have avoided exit

checks when leaving Schengen territory.

43


should be had to face-to-face checks and/or

physical search of the vessel whenever

deemed necessary by risk analysis.

In addition, coastal fisheries mentioned in the

Common Manual, Part II, point 3.4.4.4

should be checked occasionally in accordance

with proper risk analysis.

9.1.5 Pleasure boats

Monitoring should be carried out to ensure

that pleasure boats coming from third

countries follow the correct procedure.

Exchange of information is arranged between

Schengen States and neighbouring third

states. The third state reports inter alia boats

that are leaving its territory and, especially,

boats that have avoided exit checks when

leaving the Schengen territory.

9.1.6 Ships with a large number of

illegal immigrants on board

Emergency plans should be set in place to

handle ships with a large number of illegal

immigrants on board, covering the following

aspects:

• apprehending the persons responsible for

illegal transportation with a view to

further judicial measures

• apprehending all persons on board in

order to take responsibility for the

immigrants with a view to repatriation

and in order to guarantee their health and

A government body is nominated for inter-

ministerial and inter-agency coordination.

This body possesses the necessary parallel

representative sub-bodies at regional and

local levels to facilitate coordination and the

clear division of responsibilities. Adequate

powers and resources are made available to

this structure and especially to those regional

bodies responsible for carrying out physical

measures.

This structure is held in readiness to facilitate

44


protection rights

• relaying information on high-risk vessels

to other Schengen States by EISICS and

the CIREFI early warning system

implementation of recommended practice.

Local and regional authorities maintain

consistent plans for their participation and

cooperation. These plans are regularly tested

and developed as instructed by the

government coordinating body.

9.1.7 Stowaways

In order to combat the phenomenon of

stowaways, authorities should adopt

preventive measures against unauthorised

boarding/leaving of ships.

9.1.8 Fake crews

In order to combat fake crews as a means of

illegal entry, authorities should carry out

intelligence operations, exchanges of

information, investigative measures and

prosecution.

9.1.9 Seamen's identity document

When issuing seamen´s identity documents,

close attention should be paid to the security

features of the document.

The security features of the document are as

for national passports.

9.1.10 Transiting seamen

Under the acquis, the captain or the

shipowner's agent should inform the

The captain or the shipowner's agent should

inform the border management authorities as

45


authorities in charge of border management at

the port of entry of the arrival of seamen in

need of a transit visa and any other changes in

crew composition.

The border management authorities should

check the accuracy of the data provided by

the captain or the shipowner´s agent.

The authorities can issue transit visas to

seamen only after careful verification of the

data provided by the shipowner and

confirmation by the authorities of the place

where the ship is moored or is expected to

moor .

soon as possible and always at least three

days prior to the arrival of the seamen, in

order to expedite procedures for issuing

transit visas.

A unit on duty 24 hours a day will be set up

to give swift, coordinated answers to requests

for transit visas for seamen made at the

border.

9.1.11 EISICS

Vessels and their crew and passengers should

be thoroughly checked in the first port of

arrival in the Schengen territory. If the

vessel's next stop will also be in a port of a

Schengen State using the EISICS system,

then the border management authority of the

first Schengen State should, when the vessel

is leaving that state, fax the EISICS form to

the next port. The EISICS form should list

all the relevant information gathered by the

border management authority on the vessel.

The border checks in the next port can be less

thorough, based on the information received

in the EISICS form.

All Schengen States should join the EISICS

system, which should be computerised, in

order to ensure that information is protected

and sent on quickly to the relevant border

management authority.

46


Electronic data interchange

Schengen States should encourage the use of

electronic data interchange (EDI) at their

maritime borders. Electronic data, inter alia

to identify crew members, passengers,

stowaways as well as their travel

documents on board a vessel, transferred in

good time, should act as a binding substitute

for all paper documents in use at the border of

a Schengen State.

Use of EDI should be facilitated by

harmonising and standardising legislation on

binding force or consequences. Border

authorities of the Schengen port where a

vessel is leaving its berth should transfer the

updated electronic data in good time to the

authorities of the next Schengen port of

destination.

9.2 Air borders

9.2.1 Crews

Crews should be checked systematically

9.2.2 Cargo flights

Systematic check should also be applied for

crews of cargo flights

9.2.3 Procedure for transit passengers

(airport )

A separate transit area for non-Schengen

passengers should be available

have a special facility for priority checks on

crews

officers should go to cargo flights to meet the

staff

Possibility to perform checks in the

(international) transit zone

47


9.2.4 General aviation

----------- -----------

9.3 Checking of trains

Trains should be under proper and continuous

surveillance from border to border check

point. Actual border checks may be carried

out on the moving train, or at the railway

station either on board the train or in the fixed

premises used specifically for those purposes.

Border management authorities should have

effective tools to check travel documents and

consult online databases at their disposal in

all cases. All passengers and crew (and train)

should be checked according to Schengen

rules (Art. 6 of the Schengen Convention).

Trains should be under continuous

surveillance from border to border check

point (e.g. patrols, technical surveillance,

video).

Platform area for external traffic trains to be

physically separated from internal traffic

ones. Possibilities of avoiding border checks

should be prevented and arrival area should

be under proper control.

Pre-frontier checks together with border

authorities of neighbouring third countries

may be effective, if the relevant jurisdictional

requirements are met and reciprocal trust

exists between (a) neighbouring countries

and (b) between the Schengen partners.

Agree on cooperation with train carriers.

This cooperation should, where appropriate,

be formalised by providing a list of

passengers to border authorities in good time

beforehand.

mobile SIS equipment on trains (checks

before crossing the border and on hotspots)

48

PART TWO: REMOVAL AND READMISSION

1. INTRODUCTION

The fight against illegal immigration is a major concern for all the Member States of the Union.

Freedom of movement within the Schengen territory requires a corresponding reinforcement of the

external borders around that territory, and an effective and dissuasive policy on the removal of

illegal aliens.

Article 23(1) of the Schengen Convention states that third-country nationals (ie non-EU and

non-EEA nationals) who do not fulfil or who no longer fulfil the short-stay conditions applicable

within the territory of a Schengen State shall normally be required to leave the territories of the

Schengen States immediately. When departure is not voluntary, or if the immediate departure of

the third-country national is necessary for reasons of national security or public order, removal is to

be carried out in accordance with the national law of the Schengen State in which he was

apprehended.

Thus, while the Schengen Convention clearly states the need for removal, the Schengen acquis on

the subject is very limited as the Schengen States are free to define the circumstances and

implementation of such measures.

Some harmonisation of legislation has taken place in the context of Directive 2001/40/EC, cited

above, on the mutual recognition of decisions on the expulsion of third-country nationals, the aim of

which is to ensure more effective enforcement of these measures and better cooperation between

Member States.

The method used to draw up the document was firstly to establish a snapshot of existing national

practices and then to choose from this range those practices which seemed to be moving in the

direction of greater effectiveness. The list thus drawn up is indicative and non-exhaustive.

49

RECOMMENDATIONS

2. REMOVAL MEASURES

These should comply with the rule of law and

be based on law.

These should be adopted in compliance with

the provisions laid down in:

the European Convention on Human

Rights of 4 November 1950,

the United Nations Convention against

Torture and Other Cruel, Inhuman or

Degrading Treatment or Punishment of 10

December 1984,

the Geneva Convention relating to the

Status of Refugees of 28 July 1951 and the

Protocol of 31 January 1967,

the International Convention on the Rights

of the Child of 20 November 1989,

the Charter of Fundamental Rights of the

European Union of 13-14 October 2000.

− Objective: To achieve the return of the

third-country national subject to the

measure to his country of origin or to a

country which will admit him.

BEST PRACTICES

Effective removal from the territory.

To achieve this, combine the measure, if

appropriate, with a ban on the third-country

national returning to the territory for a

sufficiently long period and incorporated into

the SIS in order to be dissuasive.

Failure to comply with a ban on returning to

the territory could incur sanctions.

50

− Two types of decision:

− Administrative based on:

the failure to comply with rules on entry or

residence of third-country nationals,

a threat to public order or national security.

− Administrative or judicial sanction

in connection with criminal offences of a

certain level of seriousness.

Guarantees granted

Possibility for the detained third-country

national to appeal against the measures

imposed on him.

3. PERSONS CONCERNED

3.1. Illegal third-country nationals

If the third-country national does not comply

with this decision, he should be removed.

Allow the third-country national to exercise

the rights granted to him.

In this case the decision requesting him to

leave the territory may be followed up with a

check on departure from the territory.

If the third-country national does not comply

with the requirement to leave the territory, he

should be placed on both the national and, if

appropriate, SIS wanted persons lists.

To ensure the credibility of the system,

deliberate resistance to removal may be

subject to specific sanctions, which will

51

3.2. Third-country nationals whose

presence constitutes a threat to public

order or national security

(1-2): Particular case of unaccompanied

minors

obviously not affect the initial removal order,

which should be enforced.

The following recommendations or best practices are only applicable to the extent that

they are allowed by the national legislation of each Schengen State.

- The removal of unaccompanied minors

while ensuring the best interests of the child

and respect for the provisions of the

International Convention on the Rights of the

Child of 20 November 1989.

- The removal of unaccompanied minors as

soon as possible while preserving the interests

of the child. As far as possible ensure that

minors are accompanied and taken charge of

upon arrival.

4. IMPLEMENTATION OF REMOVAL

MEASURES

4.1. Identification

- Identification, particularly by the finger-

printing of third-country nationals subject to a

removal measure.

- Inclusion in a data file of third-country

nationals who apply for a visa or

residence permit. To be implemented

in the future. (Conclusions of JHA

Council on 20 September 2001).

Establishment of a national third-country

nationals file.

52

- For the purposes of non-admission,

complete the record by indicating grounds.

4.2. Detention

Third-country nationals who constitute a

threat to public order or national security must

be detained during the period preceding

implementation of the removal order.

This is necessary when the person cannot be

removed rapidly, in particular because he

does not possess a travel document.

Detention may be used to prevent the

third-country national avoiding a measure for

his removal and to prepare for implementation

of the measure.

- Need for specific premises

Third-country nationals subject to a removal

order must in principle be held in special

centres with a proper legal status

distinguishing them very clearly from prison

institutions, equipped with facilities which

guarantee accommodation and hygiene

conditions respecting human dignity. The

facilities should also allow those detained

there to exercise their rights (interpreters,

visits, health care, etc.).

- Guarantees

Possibility for the detained third-country

national to appeal against the measures

imposed on him.

53

- Minors

They can be detained only in specific cases

and in compliance with the International

Convention on the Rights of the Child of

20 November 1989.

- Duration

The duration of the period of detention of

third-country nationals is a decisive factor in

the removal measure, the aim being to allow

the service responsible for removal the time

strictly necessary for practical organisation of

the departure.

4.3. Issue of consular laissez-passers

Laissez-passers obtained from consular

authorities within time limits compatible with

the periods of detention.

To this end, strengthen consular cooperation

4.4. Financing removals

Examination of the possibility of the costs of

removal being borne by:

- the third-country national himself;

- the facilitators.

It would be appropriate to provide for

alternatives to detention for minors.

This objective justifies an appropriate period

of detention.

Use all appropriate means, including consular

authorities visiting detention centres.

Examination of the possibility of the costs of

removal being borne by:

- the third-country national himself;

- the person who provided accommodation for

the third-country national or by whoever

sponsored the third-country national in a

sponsorship declaration when the

third-country national was issued with a visa

or residence permit;

- the person employing the third-country

54

4.5. Escort

Where necessary, escorts are provided by

officials specially trained for the task.

The removing State should conduct a risk

assessment of the person being removed to

determine whether the use of escort is

required, and if so, the number of escorts

necessary.

The carrier involved in the actual execution of

the removal should be informed about the

results of the risk assessment in accordance

with the Chicago Convention of

7 December 1944 and the standards and

recommendations adopted by ICAO.

national illegally;

- the facilitators.

Possibility of charging the removal and

detention costs to the abovementioned people.

- Possibility of sanctions if they do not pay.

The introduction of special European charters

could contribute to improving the removal

arrangements.

- Readmission

Readmission agreements generally provide

for two categories of persons who may be

readmitted: the country's own nationals, and

nationals of third countries. There may also

be provisions on transit.

Develop cross-border cooperation between all

of the competent authorities concerned.

55

Readmission makes the Member States and

the third States responsible for controlling

their borders efficiently.

This special procedure consists of removing

illegal third-country nationals in State A to

State B which is their State of origin and/or

transit, and of requiring the latter to receive

them.

Readmission takes place at particular points

determined in each agreement. It is

indispensable that the authorities of the

readmitting State should be physically

capable of accepting returnees as soon as the

decision of acceptance is taken.

Introduce effective readmission policies using

all means available whether in legal

instruments (readmission agreements,

introduction of readmission clauses into other

kinds of agreement, etc.) or in practical terms.

Response to the readmission request as soon

as possible.

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© European Union, 2002

Reproduction is authorised provided the source is acknowledged.

PREFACETABLE OF CONTENTSINTRODUCTIONPART ONE : BORDERS, BORDER SURVEILLANCE AND BORDER CONTROLA. INTEGRATED BORDER SECURITY MODEL (A MECHANISM OF DIFFERENT TIERS/FILTERS)1. INTRODUCTION2. THE FOUR TIERS3. KEY ELEMENTS FOR THE CORRECT APPLICATION OF THE INTEGRATED BORDER SECURITY MODEL

B. DETAILS OF RECOMMENDATIONS AND BEST PRACTICES1 Strategy and organisational structure2 Infrastructure3 Staff4 Training5 Equipment6 Internal coordination7 Different kinds of international cooperation8 Rules and procedures9 Particular cases for certain types of border

PART TWO: REMOVAL AND READMISSION1. INTRODUCTION2. REMOVAL MEASURES3. PERSONS CONCERNED4. IMPLEMENTATION OF REMOVAL MEASURES

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